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SIGAR 17-08 Inspection Report

Herat University Women’s Dormitory: Generally

Well Constructed, but Instances of Contract

Non-Compliance Should Be Addressed

SIGAR 17-08-IP/Herat University Women’s Dormitory

SIGAR

O C T O B E R

2016

Special Inspector General for

Afghanistan Reconstruction

October 25, 2016

The Honorable John F. Kerry

Secretary of State

The Honorable Ashton B. Carter

Secretary of Defense

General Joseph L. Votel

Commander, U.S. Central Command

The Honorable P. Michael McKinley

U.S. Ambassador to Afghanistan

General John W. Nicholson, Jr.

Commander, U.S. Forces–Afghanistan and

Commander, Resolute Support

Lieutenant General Todd T. Semonite

Commanding General and Chief of Engineers,

U.S. Army Corps of Engineers

This report discusses the results of SIGAR’s inspection of the newly built Herat University women’s

dormitory located in Herat, Afghanistan. U.S. Forces–Afghanistan (USFOR-A) provided $7.1 million in

Commander’s Emergency Response Program funding to the U.S. Army Corps of Engineers (USACE) to build

a women’s dormitory at Herat University. USACE awarded a $5.59 million contract to Poushang

Construction Company to design and construct a three-story dormitory for 372 female students. We found

that Poushang Construction generally built a well-constructed dormitory and supporting facilities according

to contract requirements. However, we found instances of non-compliance with the contract, such as the

absence of flashing-light fire alarms, which could place the health and safety of residents and visitors at

risk. Further, we found an instance of poor workmanship involving uneven plastering on interior walls and

a problem with the dormitory’s 36 fire extinguishers that could impact their use in the event of a fire.

We recommend that the Commanding General, USFOR-A, in coordination with the Commanding General

and Chief of Engineers, USACE, take the following actions and report the results back to SIGAR before the

contractor warranty period expires on December 14, 2016: (1) direct Poushang Construction to correct all

instances of contract non-compliance identified in this report, specifically the failure to install flashing-light

fire alarms, the missing exit signs and smoke detectors, and the improperly constructed library stairway

area and ramp; and (2) in coordination with the Herat University operation and maintenance activity,

examine the dormitory’s fire extinguishers to determine whether they are faulty, and, if they are, replace

them.

We provided a draft of this report to USFOR-A and USACE for comment. USFOR-A and USACE partially

concurred with both of our recommendations. For the parts of the recommendations it did not concur with,

USACE noted that it did so based on its determination that the recommendations mentioned some items

for which it already had provided documentation showing that the items met contract specifications.

Based on USFOR-A’s and USACE’s comments, our review of USACE documentation, and our site visits in

September 2016, we revised our recommendations. USFOR-A’s and USACE’s comments are reproduced in

appendices II and III, respectively.

SIGAR conducted this inspection under the authority of Public Law No. 110-181, as amended, and the

Inspector General Act of 1978, as amended; and in accordance with the Quality Standards for Inspection

and Evaluation, published by the Council of the Inspectors General on Integrity and Efficiency.

John F. Sopko

Special Inspector General

for Afghanistan Reconstruction

SIGAR 17-08-IP/Herat University Women’s Dormitory Page iii

ABBREVIATIONS

IBC International Building Code

MoHE Ministry of Higher Education

O&M operation and maintenance

PAS Public Affairs Section

USACE U.S. Army Corps of Engineers

USFOR-A U.S. Forces–Afghanistan

SIGAR 17-08-IP/Herat University Women’s Dormitory Page 1

On June 24, 2013, U.S. Forces–Afghanistan (USFOR-A) provided approximately $7.1 million in Commander’s

Emergency Response Program funding to the U.S. Army Corps of Engineers (USACE) to build a women’s

dormitory at Herat University in Herat, Afghanistan. On July 26, 2013, USACE awarded a $5.28 million firm-

fixed-price contract to Poushang Construction Company, an Afghan firm, to design and construct a three-story

dormitory for 372 female students.1 The contract required the dormitory to have 93 4-person bedrooms, 2

shared baths on each floor, a common area, a laundry room, a dining room, and separate facilities for a library,

power house, and sports area.2 Poushang Construction started building the dormitory on August 10, 2013, and

the dormitory was completed on December 13, 2014. Under the contract, the dormitory has a 2-year warranty

period, which began on December 14, 2014. On February 13, 2015, USACE turned over the dormitory,

operation and maintenance (O&M) manuals, and as-built drawings to USFOR-A.

USFOR-A transferred the dormitory to the Afghan Ministry of Higher Education (MoHE) on March 1, 2015. As

part of the transfer, USFOR-A agreed to complete additional work outlined in two approved modifications that

USACE requested and issued to Poushang Construction. USACE approved the first modification, valued at

$40,900, on February 26, 2015, for translating the O&M manuals into Dari and Pashto, and the second

modification, valued at $268,700, on March 6, 2015, for the installation of a voltage stabilizer and under-

voltage protection.3 These two modifications increased the contract award amount to approximately $5.59

million.4

On May 18, 2015, the American Consulate General Frankfurt awarded Barikab Durani Logistic Service, an

Afghan company, a $276,479 fixed-price contract to procure, deliver, and install new dormitory furnishings.5

This included furnishings and equipment for the bedrooms, kitchen, library, common areas, laundry facility,

dining hall, and offices. The contractor was to install the furnishings and equipment within 60 days of the

contract award, or by July 16, 2015.

On August 25, 2015, the Public Affairs Section (PAS) at U.S. Embassy Kabul entered into a $1.08 million

cooperative agreement with Binazeer Construction Company, an Afghan firm, to provide O&M for the women’s

dormitories at Herat and Balkh Universities.6,7 The agreement required Binazeer Construction Company to

procure labor, materials, and equipment to support O&M of the Herat University women’s dormitory for 2

years—from August 2015 to August 2017. A February 2015 Memorandum of Understanding between PAS, the

MoHE, and Herat University, requires Herat University to take over responsibility for the dormitory’s O&M in

August 2017, which, according to a 2012 Memorandum of Agreement between USFOR-A and the MoHE, is

estimated to cost $220,000 annually.

The objectives of this inspection were to determine whether (1) construction of the dormitory was completed in

accordance with contract requirements and applicable construction standards, and (2) the dormitory was

being used and maintained.

We conducted our work in Kabul and Herat, Afghanistan, from February 2015 through October 2016 in

accordance with the Quality Standards for Inspection and Evaluation, published by the Council of the

Inspectors General on Integrity and Efficiency. The engineering assessment was conducted by our professional

1 The contract number is W911KB-11-D-0012-0003.

2 The two shared bathrooms on the first floor have four toilets, four showers, and four sinks each, while the two shared

bathrooms on the second and third floors have five toilets, five showers, and five sinks each.

3 A voltage stabilizer is a device that feeds constant electrical current to units, such as air conditioners and computers, and

protects them from damage due to voltage fluctuations. An under-voltage protector is an electronic circuit used to turn off

the power of a device if the voltage level drops below a specific threshold.

4 USACE also obligated $745,364 for labor and security during construction and, according to USFOR-A officials, returned

the remaining $763,741 of the $7.1 million Commander’s Emergency Response Program funds to USFOR-A.

5 The contract number is SGE50015M0062.

6 The cooperative agreement number is SAF20015CA011.

7 SIGAR initiated an inspection of the women’s dormitories at Balkh University on August 10, 2015.


engineer in accordance with the National Society of Professional Engineer’s Code of Ethics for Engineers.

Appendix I contains a detailed discussion of our scope and methodology.

DORMITORY IS GENERALLY WELL CONSTRUCTED, BUT WE FOUND INSTANCES

OF NON-COMPLIANCE WITH THE CONTRACT THAT SHOULD BE ADDRESSED

We conducted on-site inspections of the Herat University women’s dormitory from June 29 through July 8,

2015; on September 1, 2015; and on September 7 and September 10, 2016.8 The dormitory is located

approximately 1 kilometer from the main campus and is the university’s only female-dedicated living space. We

found that Poushang Construction generally built a well-constructed dormitory and supporting facilities. For

example, the completed three-story dormitory included, as required, 93 4-person bedrooms, two shared

bathrooms on each floor, a kitchen, a common area, laundry facilities, a dining hall, and separate facilities for

the library, power house, and sports area (see photo 1). In addition, Poushang Construction completed the

construction of the women’s dormitory on schedule and completed the two modifications for the translated

O&M manuals and the installation of the voltage

stabilizer and under-voltage protection. At the time of

our June-July 2015 inspection, Barikab Durani Logistic

Service was in the process of installing the required

dormitory furnishings, to be completed by July 15,

2015.

However, we found several instances of non-

compliance with contract requirements and technical

specifications, as well as one instance of poor

workmanship. Most of the deficiencies we found, such

as the absence of required flashing-light fire alarms

and the presence of potentially defective fire

extinguishers, could place the health and safety of the

dormitory’s residents and visitors at risk.

Instances of Non-Compliance with Contract Requirements Pose Potential Risks to

the Health and Safety of Dormitory Occupants

During our June-July 2015 inspection, we found five instances where Poushang Construction did not comply

with contract requirements. All of these instances of noncompliance pose potential health or safety risks.

Specifically, we found:

No lightning protection system: The design drawings and the National Fire Protection Association

Codes required Poushang Construction to install a lightning protection system for the dormitory’s

power house building; however, at the time of our inspection, we found that the system had not been

installed. When lightning strikes and passes through a building, it can take more than one path to the

ground at a time. Lightning can also pass through the air from one conductive path to another in what

is called a side flash, which can create sparks that start fires.9 A lightning strike on the power house

building could disable the main power supply to the dormitory and library, which could result in safety

8 On September 7 and September 10, 2016, we conducted additional site visits to verify the status of items USACE

mentioned in its comments on a draft of this report (see appendix III).

9 A side flash occurs when lightning strikes one object and a portion of the current jumps to another object.

Photo 1 - Herat University Women’s Dormitory

Source: SIGAR, July 2, 2015


problems and significant repair costs. However, this risk can be reduced by installing the required

lightning protection system.

No flashing-light fire alarms: The contract required adherence to the International Building Code (IBC),

which requires a flashing-light fire alarm capability in sleeping units.10 However, the design drawings

did not include flashing-light fire alarms in the dormitory bedrooms, and during our inspection we did

not observe flashing-light fire alarms in the bedrooms. The absence of flashing-light fire alarms may

increase the safety risks to dormitory occupants and visitors in the event of a fire.

Exit signs missing or not labeled in Dari and Pashto: The contract required Poushang Construction to

install exit signs in Dari and Pashto above the doors and for the signs to be visible in any direction of

egress. We found that three of the required exit signs were not installed. Based upon the design

drawings, one exit sign should have been installed on the dormitory’s first floor near the middle

stairwell and restroom, another in the same location on the second floor, and the third on the ground

floor outside of the electrical room. The absence of these exit signs could cause confusion during an

emergency situation, such as a fire. Further, the exit signs that were installed were written in Dari and

English, rather than the required Dari and Pashto.

Not all smoke detectors were installed: The contract, design drawings, and technical specifications

required Poushang Construction to install smoke detectors and heat detectors in accordance with the

National Fire Protection Association Codes. However, we found that only four of the five dining hall

smoke detectors were installed, and of those four, two were not located in the correct location,

according to the design drawings. The absence and incorrect placement of the required number of

smoke detectors could put occupants and visitors at greater risk in the event of a fire.

Improperly constructed stairway landing area and

library ramp: The contract required adherence to the

IBC, which requires a minimum 48-inch landing area

at the base of the library’s emergency exit stairway.11

When we measured the landing area, it was 29 inches

(see photo 2). Further, the design drawings required

Poushang Construction to construct the library ramp

with no more than an 8 percent slope, but we found

that the ramp had a 14 percent slope. The narrow

emergency exit landing area and steep ramp slope

could present safety issues for occupants exiting the

facility during an emergency situation.

10 See IBC 2009, Section 907.5.2.3.

11 See IBC 2009, Section 1007.3.

Photo 2 - Narrow Stairway Landing Area



Additional Deficiencies Identified Included Poorly Finished Interior Walls and

Potentially Faulty Fire Extinguishers

During our June-July 2015 inspection, we also found one instance of poor workmanship by Poushang

Construction and potentially faulty fire extinguishers that may not work in the event of a fire. Specifically, we

found:

Poorly finished interior walls: The contract’s technical

specifications stated that the dormitory’s plaster

surfaces, such as interior walls, should be brought to a

true, even finish with a rod or straightedge to fill surface

defects. However, during our inspection, we found that

the plaster surface on the interior walls had noticeable

waves (see photo 3). Although the condition of the walls

does not pose a health or safety risk, it shows a lack of

compliance with contract requirements. In the June 5,

2014, Weekly Quality Deficiency Tracking List, USACE

noted the poorly finished interior walls. At the time of our

inspection, we found no evidence that corrective action

had been taken.

Fire extinguishers have duplicate serial numbers and do

not have the required external markings: Poushang

Construction installed 36 dry chemical fire extinguishers in

the dormitory even though the contract only required the

installation of 29 of these extinguishers. Two additional

fire extinguishers were installed on each of the dormitory’s

three floors, and two fire extinguishers were kept as

spares in the electrical room. However, we found that all of

the extinguishers, manufactured by Buckeye Fire

Equipment Company, a U.S. company, were missing the

embossed manufactured date, typically located on the

bottom of the cylinder (see photo 4). Every Buckeye fire

extinguisher’s manufacture date should be embossed on

the bottom of the cylinder, and this embossed date does

not scratch or fade. We also found that 30 of the fire

extinguishers had the same serial number, instead of each

fire extinguisher having its own unique serial number as required by the manufacturer. The lack of the

required manufacture date and duplicate serial numbers raises the concern that these fire

extinguishers may not work in the event of a fire.

USACE Approved the Design and Construction of the Women’s Dormitory without a

Heating System

The contract that USACE awarded to Poushang Construction required that all building designs follow the 2009

IBC. The 2009 IBC calls for a heating system in interior spaces intended for human occupancy, which would

include a dormitory. In our review of Poushang Construction’s design drawings for the women’s dormitory at

Herat University, we noticed that the final dormitory design drawings did not include a heating system, and the

site visit confirmed that no heating system had been installed. In USACE’s May 2014 final design review, the

Photo 3 - Poorly Finished Interior Wall

Source: SIGAR, June 29, 2015

Photo 4 - Fire Extinguisher with No

Manufacture Date



mechanical engineer who reviewed the design commented that, “no heating in the building is unacceptable

and does not meet code. Recommend resubmittal.”12

In May 2016, USACE officials told us that they ultimately approved the design and construction of the

dormitory with no heating system because the MoHE did not want one installed. However, the winter

temperature in Herat drops to approximately 26 degrees Fahrenheit or colder, and Herat University officials

told us that students were using large, high-voltage portable electric heaters when it was cold, which caused

fuses to blow due to the dormitory’s fluctuating electrical power. USACE officials and Herat University officials

told us that students have now switched to low-voltage heaters to stay warm and to avoid blowing fuses.

USACE officials cited three reasons for approving the dormitory’s design and construction without a heating

system. First, Herat University is out of session during the winter, and as a result, the dorm is closed from

December through March every year. Second, the MoHE was concerned about the high cost of operating and

maintaining a modern heating system. Third, USACE officials told us they built the dormitory to typical Afghan

standards that USACE has used across Afghanistan. However, MoHE officials told us that students expressed

dissatisfaction with the lack of heating system. The women’s dormitories currently under construction at Balkh

University are designed and being constructed with heating systems.

We did not find any evidence in the documentation provided by USACE that the MoHE requested that a heating

system not be installed, that USACE concurred with such a request, or that USACE modified the contract to

account for such a deviation from the IBC. The lack of documentation regarding the decision not to install a

heating system raises the possibility that USACE paid for a heating system that was not installed. The design

was approved without the installation of a heating system, but it is unclear whether the contract award amount

was adjusted to accommodate for this change.

THE DORMITORY IS BEING USED, BUT THERE ARE CONCERNS ABOUT LONG-

TERM MAINTENANCE COSTS

The Herat University women’s dormitory was being used at the time of our September 2015 site visit, but it

was not fully occupied. According to Herat University and PAS officials, at the time of our visit, there were

approximately 136 female students and two female staff living in the dormitory, which was built to

accommodate 372 female students. Herat University officials told us that at the start of the new school year in

March 2016, there were 200 female students living in the dormitory.

MoHE and Herat University officials told us that they and the students were generally satisfied with the

dormitory and were pleased to have a dedicated living space for female students. However, Herat University

officials did express dissatisfaction with the lack of a water filtration system, the small kitchen, and the poorly

finished interior walls.13 In addition, Herat University officials told us that dormitory residents cannot

simultaneously operate electrical appliances that consume high amounts of electricity because it overloads the

electrical system, causing fuses to blow.

Herat University officials also expressed concerns about the university’s financial ability to operate and

maintain the dormitory after the current $1.08 million 2-year PAS O&M cooperative agreement for the Herat

and Balkh Universities women’s dormitories expires in August 2017. The officials told us that the cost of

replacing parts and equipment, even with less expensive substitutes, may exceed the MoHE’s estimated

annual budget of $220,000 for future O&M costs for the Herat University women’s dormitory. Herat University

officials are also concerned that there may be additional O&M issues and associated costs once the dormitory

is fully occupied. Despite these concerns, university officials stated they plan to add one more bed to each

12 USACE, Herat University Women’s Dormitory 100 Percent Resubmittal 4, May 8, 2014.

13 The contract did not require Poushang Construction to install a water filtration system.


dormitory room to accommodate five female students per room. If that occurs, the number of student

residents could increase to 465, even though the building was built to accommodate 372 student residents.

CONCLUSION

Poushang Construction generally constructed a well-built women’s dormitory and supporting facilities at Herat

University. The fact that university officials and the 200 female student occupants are generally satisfied with

the dormitory speaks well for the project. Further, to their credit, USACE and the MoHE found a way to save

money by not installing a heating system in the dormitory. The system would not only have been costly to

operate and maintain, but, more significantly, it would not have been used much because the dormitory is

closed in the winter months.

However, we found some instances of contract non-compliance, such as the absence of flashing-light fire

alarms and missing exit signs. These instances of contract non-compliance could pose safety risks for students

and visitors. Lastly, of the 36 fire extinguishers installed in the dormitory, we found that none of them had the

embossed manufacture date on the bottom and that 30 fire extinguishers had the same serial number, which

raises concerns about whether they would work in the event of a fire. These deficiencies require immediate

attention because the contract warranty period expires in December 2016.

RECOMMENDATIONS

To help protect the U.S. taxpayers’ investment in the Herat University women’s dormitory, and to reduce the

safety risks to dormitory occupants, SIGAR recommends that the Commanding General, USFOR-A, in

coordination with the Commanding General and Chief of Engineers, USACE, take the following actions and

report the results back to SIGAR before the contractor warranty period expires on December 14, 2016:

1. Direct Poushang Construction to correct all instances of contract non-compliance identified in this

report, specifically the failure to install flashing-light fire alarms, the missing exit signs and smoke

detectors, and the improperly constructed library stairway area and ramp; and

2. In coordination with the Herat University O&M activity, examine the dormitory’s fire extinguishers to

determine whether they are faulty, and, if they are, replace them.

AGENCY COMMENTS

We provided a draft of this report to USFOR-A and USACE for comment. In the draft, we recommended that the

Commanding General, USFOR-A, in coordination with the Commanding General and Chief of Engineers, USACE,

take the following actions and report the results back to SIGAR within 90 days:

1. Direct Poushang Construction to correct all instances of contract non-compliance identified in this

report, such as the failure to install the lightning protection system and flashing-light fire alarms,

before the contract warranty period expires in December 2016, and determine whether the cost of a

heating system was included in the contract.

2. Conduct an examination of the dormitory’s fire extinguishers to determine whether

a. they have the required manufacture dates and stamps, and

b. for those that do not meet those requirements, determine whether they are faulty, and, if they

are, replace them.


With respect to recommendation 1, the specific deficiencies we identified in the draft report were related to (a)

the lightning protection system, (b) flashing-light fire alarms, (c) exit signs, (d) smoke and heat detectors, (e)

the narrow emergency landing area and steep ramp slope for the library, and (f) the heating system.

USFOR-A and USACE provided written comments on the draft report. In those comments, USFOR-A and USACE

partially concurred with both of our recommendations. Where it did not concur, USACE noted that it did so

based on its determination that our draft report included items for which it already had provided

documentation showing that it completed the work in accordance with contract specifications. USFOR-A’s and

USACE’s comments are reproduced in appendices II and III, respectively. USACE also provided technical

comments, which we incorporated into this report, as appropriate.

USFOR-A and USACE did not concur that the lightning protection needed to be corrected, stating that “the

electrical lightning protection system is installed according to the USACE approved electrical design and where

it was required by the design.” USACE also provided us the photos and design build drawings. Based on our

review of this information and our September 2016 site visits, we determined that the required lightning

protection system has been installed on the dormitory’s power house building. As a result, we removed the

lightening protection system from our first recommendation.

USFOR-A and USACE did not concur that the flashing-light fire alarms needed to be installed. USACE stated that

“according to [its] review of the facilities design, International Building Code, and contract specifications, all

required flashing-light fire alarms were installed properly where required.” USACE also provided us two photos

of flashing-light fire alarms installed in a restroom. However, the IBC requires that “sleeping units be provided

with the capability to support visual alarm notification.”14 During our September 2016 site visits, we confirmed

that there were no flashing-light fire alarms in the dormitory bedrooms. As a result, the flashing-light fire alarms

will remain in our first recommendation until we receive evidence that each bedroom is capable of supporting

visual alarm notification.

USFOR-A and USACE did not concur that the exit signs required correction, stating that all exit signs were

installed at the locations specified in the design drawings and show the correct direction. USACE also provided

us photos showing some of the signs that were installed and added that even in places where there was an

exit sign in English, the “design builder had installed additional Dari/Pashto signs.” During our September

2016 site visits, we found that three exit signs were missing, and the installed exit signs were written in Dari

and English, not Dari and Pashto as the contract required. Therefore, the exit signs will remain in our first

recommendation until we receive evidence that the three missing exit signs have been installed, and that all

exit signs are written in Dari and Pashto.

USFOR-A and USACE partially concurred that the smoke and heat detectors needed to be addressed, stating

that, with several approved exceptions, all smoke detectors were installed according to the design drawings.

USACE added that four smoke detectors were installed in the kitchen, instead of five, because the fifth smoke

detector was too close to the stove used for cooking and would have resulted in false alarms. However, the

contract and design drawings required two heat detectors in the kitchen and five smoke detectors in the dining

room. During our September 2016 site visits, we found that two heat detectors were installed in the kitchen,

but only four of the required five smoke detectors were installed in the dining hall. Further, two of those smoke

detectors located in the dining hall were not installed in their designated locations. The smoke detectors will

remain in our first recommendation until we receive documentation of the approved exemptions from number

and location of the smoke detectors called for by the facility design.

USFOR-A and USACE partially concurred that the narrow emergency landing area and steep ramp slope for the

library should be corrected, stating that USACE is in the process of reviewing the circumstances surrounding

the narrow emergency exit landing area and steep ramp slope. USACE noted that it will provide us the results

within 90 days. USACE added that the library, two exit ways, and emergency landing area are sufficient for

emergency egress and should not present significant safety issues for occupants exiting the facility during an

14 See IBC 2009, Section 907, Fire Alarm and Detection Systems-Occupant Notification System.


emergency situation. The narrow emergency landing area and steep ramp slope for the library will remain in

our first recommendation until we receive and evaluate the results of USACE’s review as to why the stairway

landing areas and ramp slopes did not meet construction requirements.

USFOR-A and USACE partially concurred that the heating system needed to be addressed, stating that the

MoHE did not request a heating system because “the dormitory is closed from December to March of each

year.” USACE added that the high cost of operating and maintaining a modern heating system was not

acceptable for the university, and the school planned to use portable heaters, on a temporary basis, if it gets

too cold. USACE also confirmed that the contract did not include specifications or funds for a heating system.

Because USACE confirmed that the cost of a heating system was not included in the contract, we removed the

heating system from our first recommendation.

USFOR-A and USACE partially concurred with our recommendation to conduct an examination of the

dormitory’s fire extinguishers to determine whether they have the required manufacture dates and stamps. In

its comments, USACE stated that it approved the fire extinguisher submittals, and “the brand selected,

Buckeye, is the best quality of fire extinguisher imported to Afghanistan.” USACE added that it had no

indication that the fire extinguishers did not fully meet contract requirements. However, during our June-July

2015 site inspection, we observed that although the fire extinguishers appeared to be the Buckeye brand,

some did not appear to meet Buckeye’s standards, which raises concerns that the extinguishers may not be

authentic. For example, some of the extinguishers did not have an embossed manufacture date.

To verify the information in USACE’s comments, we conducted two additional site visits in September 2016

and inspected all of the fire extinguishers in the dormitory to assess their authenticity. We used Buckeye’s

product brochures for identifying a counterfeit fire extinguisher as guidance for our assessment. We found that

none of the 36 installed fire extinguishers had the manufacture date stamped on the bottom. In addition, we

found that 30 of the 36 fire extinguishers had the same serial number, instead of each extinguisher having a

unique serial number, which is Buckeye’s standard. As a result, we determined the fire extinguishers did not

meet the manufacturer’s requirements and therefore may not be authentic.

USFOR-A and USACE did not concur with our recommendation to determine whether the fire extinguishers

without the required manufacture dates and stamps are faulty, and, if they are, replace them. In its comments,

USACE stated that “The fire extinguishers will need to be inspected by the user and Operations and

Maintenance activity to determine if the fire extinguishers still meet the original contract requirements and if

they remain operational.” USACE added that the dormitory’s O&M activity will need to replace any fire

extinguishers found to be defective. Based on USACE’s response and the results of our September 2016 site

visits, we revised our recommendations regarding the fire extinguishers. We now recommend that USFOR-A

and USACE, in coordination with the Herat University O&M activity, examine all of the dormitory’s fire

extinguishers to determine whether they are faulty, and, if they are, replace them.


APPENDIX I - SCOPE AND METHODOLOGY

This report provides the results of SIGAR’s inspection of the Herat University women’s dormitory in Herat,

Afghanistan. To determine whether work was completed in accordance with contract requirements and

technical specifications, and the dormitory was being used and maintained, we:

reviewed contract documents, design submittals, and other relevant project documentation;

conducted an engineering assessment of the project drawings and construction methods used;

interviewed U.S. and Afghan government officials concerning the project’s construction, use, and

maintenance; and

conducted on-site inspections from June 29 through July 8, 2015; on September 1, 2015; and on

September 7 and September 10, 2016.15

We did not rely on computer-processed data in conducting this inspection. However, we considered the impact

of compliance with laws and fraud risk.

In December 2014, SIGAR entered into a cooperative agreement with Afghan civil society partners. Under this

agreement, our Afghan partners conduct specific inspections, evaluations, and other analyses. In this regard,

Afghan inspectors and an engineer inspected the Herat University women’s dormitory from June 29 through

July 8, 2015; on September 1, 2015; and on September 7 and on September 10, 2016. We developed a

standardized engineering evaluation checklist covering items required by the contract and design/specification

documents for the women’s dormitory. Our checklist required our partners to analyze the contract documents,

scope of work, technical specifications, and design drawings.

We compared the information our Afghan civil society partners provided to accepted engineering practices,

relevant standards, regulations, laws, and codes for quality and accuracy. In addition, as part of our monitoring

and quality control process, we:

met with the Afghan engineer to ensure that the approach and planning for the inspection were

consistent with the objectives of our inspection and the terms of our cooperative agreement;

attended periodic meetings with our partners, and conducted our normal entrance and exit

conferences with agency officials;

discussed significant inspection issues with them;

referred any potential fraud or illegal acts to SIGAR’s Investigations Directorate, as appropriate;

monitored our partners’ progress in meeting milestones and revised contract delivery dates as

needed; and

conducted oversight of our partners in accordance with SIGAR’s policies and procedures to ensure

their work resulted in impartial, credible, and reliable information.

We conducted our work at the Herat University women’s dormitory in Herat and in Kabul, Afghanistan, from

February 2015 through October 2016. This work was conducted in accordance with the Quality Standards for

Inspection and Evaluation, published by the Council of the Inspectors General on Integrity and Efficiency. The

engineering assessment was conducted by our professional engineer in accordance with the National Society

of Professional Engineers’ Code of Ethics for Engineers. We believe that the evidence obtained provides a

reasonable basis for our findings and conclusions based on our inspection objectives. We conducted this

inspection under the authority of Public Law No. 110-181, as amended, and the Inspector General Act of

1978, as amended.

15 On September 7 and September 10, 2016, we conducted additional site visits to verify the items USACE mentioned in its

comments on a draft of this report (see appendix III).


APPENDIX II - COMMENTS FROM U.S. FORCES–AFGHANISTAN


APPENDIX III - COMMENTS FROM THE U.S. ARMY CORPS OF ENGINEERS


APPENDIX IV - ACKNOWLEDGEMENTS

Steven Haughton, Senior Inspection Manager

Jennifer Hoegen, Inspector-in-Charge

Melissa McAllister, Professional Engineer

Wilhelmina Pierce, Professional Engineer

Ahmad Javed Khairandish, Civil Engineer

Hasibullah Zeer, Program Analyst


This inspection was conducted

under project code SIGAR-I-027.

Obtaining Copies of SIGAR

Reports and Testimonies

To Report Fraud, Waste, and

Abuse in Afghanistan

Reconstruction Programs

Public Affairs

SIGAR’s Mission

The mission of the Special Inspector General for Afghanistan

Reconstruction (SIGAR) is to enhance oversight of programs for the

reconstruction of Afghanistan by conducting independent and

objective audits, inspections, and investigations on the use of

taxpayer dollars and related funds. SIGAR works to provide accurate

and balanced information, evaluations, analysis, and

recommendations to help the U.S. Congress, U.S. agencies, and

other decision-makers to make informed oversight, policy, and

funding decisions to:

improve effectiveness of the overall reconstruction

strategy and its component programs;

improve management and accountability over funds

administered by U.S. and Afghan agencies and their

contractors;

improve contracting and contract management

processes;

prevent fraud, waste, and abuse; and

advance U.S. interests in reconstructing Afghanistan.

To obtain copies of SIGAR documents at no cost, go to SIGAR’s Web

site (www.sigar.mil). SIGAR posts all publicly released reports,

testimonies, and correspondence on its Web site.

To help prevent fraud, waste, and abuse by reporting allegations of

fraud, waste, abuse, mismanagement, and reprisal, contact SIGAR’s

hotline:

Web: www.sigar.mil/fraud

Email: [email protected]

Phone Afghanistan: +93 (0) 700-10-7300

Phone DSN Afghanistan: 318-237-3912 ext. 7303

Phone International: +1-866-329-8893

Phone DSN International: 312-664-0378

U.S. fax: +1-703-601-4065

Public Affairs Officer

Phone: 703-545-5974

Email: [email protected]

Mail: SIGAR Public Affairs

2530 Crystal Drive

Arlington, VA 22202

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